Public Finance Perspective - Latvia
Public Finance Perspective - Latvia
Dmitri Maslitchenko dmitri@mailroom.com
The Latvian people have lived in the
Baltic-shore territory for more than 4,000 years, with the Latvian language
being one of the oldest living languages of Europe. "Latvia's location at
an East-West crossroads, and her ice-free ports on the Baltic Sea, have made
her an inviting target for expansional powers.".(EIU, 1995). Over the
centuries, Latvia has been occupied by the Teotonic knights of Germany, the
knights of Sweden and Poland, and the tsars of Russia. World War I and the
fall of the Russian tsars provided an opportunity for numerous Russian colonies
to break away. Only Latvia, Lithuania, and Estonia gained and maintained
independence on November 18, 1918, by signing a treaty with the new Soviet
Russian government. Latvia quickly began to develop a successful economy and
joined the League of Nations in 1922.
In 1940, Stalin presented Latvia with
an ultimatum, admit Soviet troops or face annihilation. During the next fifty
years, the Soviet Union ruled over Latvia. Freedom of speech and press were
abolished. Access to western printed materials, radio broadcasts, and other
communications were strictly forbidden, and religious activities were
destroyed. In 1987 large human rights demonstrations began to take place, with
the most notable being the 1989 joining of hands in the unforgettable Baltic
Way from Tallinn through Riga to Vilnius.
On May 4, 1990, the Supreme Council
of the Republic adopted the Declaration on the Renewal of the Independence of
the Republic of Latvia. In a referendum held in March of 1991, the people of
Latvia voted overwhelmingly in favor of democratic and independent statehood
for the Republic of Latvia. "Latvia's declaration of the restoration of
independence in August of 1991 resolved many of the issues prominent during the
transitionary period between occupation by Russian troops and Latvian
independence." (World Bank, 1995). The declaration lays down that Latvia
is "an independent democratic republic, the sovereign power of which
belongs to the people of Latvia, and its statehood is determined by the 1922
Constitution"(EIU, 1995). On September 17, 1991, the Republic of Latvia
was granted full membership in the UN. On June 5, 1993, the 5th legislature
(Saeima) was elected in general and democratic elections.
An overview of the Latvian Economy
Latvia is rapidly becoming a dynamic
market economy, with Estonia being the only other former Soviet state close to
Latvia in the transformation. However, the transformation has not been without
effort, the IMF reported only a 2% growth in GDP in 1994, following declines in
GDP in 1992 and 1993. The government's monetary policies and reform programs
have kept inflation under 2% a month, encourtaged growth in the private sector
estimated to account for over half the GDP, and encouraged growth in trade with
the West.
"Price reform in Latvia came in
several stages, bringing relative prices more in line with world prices and
reducing the excess demand for goods in Latvia.".(EIU, 1995). By 1992
less than 8% of goods and services in the consumer price index remained under
price controls. The price reform "increased GDP, contributed to an
improvement in the financial position of Latvian enterprises, and assisted in
the improvement of the government budget"(EIU, 1995). However, the
effects on the economy were only temporary.
But even the price reforms could not
pull Latvia out of a economic situation that was becoming worse in 1992.
"Depleting stocks of raw materials and energy resources and the continued
lack of foreign financial resources coupled with a reduction in agriculture due
to a severe drought assisted in the reduction of GDP by 30%.".(EIU,
1995). Unemployment increased to 2%, profit and income tax revenues declined,
and enterprise tax arrears continued to rise. The negative impact of these
events resulted in an increasing fiscal deficit.
Recent reform efforts...
Since Latvia regained independence
in 1991, the government of Latvia has made substantial progress in stabilizing
the economy and structural reforms. "The government has been involved in
a large effort to transform the economy from a centrally planned system to a
market based system.".(EIU, 1995). A comprehensive economic program was
initiated late in 1992 which focused on stabilization. Tight monetary and
fiscal policies maintained an almost balanced budget through 1993 and reduced
the rate of inflation, which declined steadily from over 900% in 1992 to less
than 2% in 1995 (World Bank, 1995). Prices and trading were liberalized.
"Efforts to restructure the banking system, to privatize the economy, and
to demonopolize large state owned enterprises, encouraged the development of
the private sector and allowed restructuring of domestic production, removed
from highly subsidized and protected markets." (World Bank, 1995).
An important element of the reform
efforts was the introduction of a national currency in 1992 which allowed the
Bank of Latvia to pursue an independent monetary policy. "Tight monetary
policy was supported by a broadly balanced government budget in conjunction
with tax-based income policy." (World Bank, 1995). Since 1993 the country
has had a stable currency, the LAT. "The nominal exchange rate, since
introduction, has continued to remain fairly stable against the dollar.".
(EIU, 1995).
The government has also made reform
progress in several other areas which include fiscal policy and the social safety
net. "Fiscal reform measures replaced the Soviet tax system with a modern
tax system and shifted expenditures significantly from subsidies and transfers
to enterprises, to other areas.".(EIU, 1995). The government is still
working in other areas including extrabudgetary funds and tax collection
capacity. A number of reform measures have also been taken to improve the
social safety net, including the introduction of unemployment benefits and
allowances to poor families. However financial resources for social safety net
reform measures continue to decrease as unemployment and pensions costs
continue to increase. "Financing of the social safety net has been
re-examined to address its dependence on the wage base which has inflated the
cost of labor and discouraged employment.".(EIU, 1995).
Progress has also been made in
structural reforms. Prices have been liberalized, the trading has opened,
banking institutions have been privatized, as have been a number of small
businesses and agricultural land. Latvia also seems to have weathered the
banking crisis and the economy has begun to recover late in 1995 and has since
experienced some growth in 1996. The banking system has moved towards fairly
stable and functioning private banks. Progress has also been made in land
restitution and agricultural privatization. Much of the agriculture has
already been privatized and the government plans to increase the pace of
privatization of state enterprises. Approximately two-thirds of the
enterprises owned by government have been privatized. Privatization of large
enterprises has been at a slower rate, with only 85 of the 200 proposed
projects completed by late 1994.(World Bank). With the approval of laws
establishing the Privatization Agency and the State Property Fund, the large
enterprise privatization increased its pace in accomplishing the goal of 75%
privatization by 1996. (World Bank, 1995).
Latvia is thus in the midst of
recovery, assisted by the country's strategic location on the Baltic and its
well-educated population.
The Budget System
Under former Soviet rule, public
administration and management were highly centralized. Since Latvia's
independence in 1991, there has been substantial progress in decentralization
of the local governments. Until recently, there were three levels of local
government: rural districts and small towns known as pagasts, regions which
included rural districts and small towns on their borders known as rayons, and
seven major cities, including Riga, which administered both the pagasts and the
rayons. Legislation within the past year has simplified the administrative
system to two levels ( 26 regions and 600 municipalities) and has clarified and
separated responsibilities for expenditure. "New laws provide for a
stable and transparent system of revenue assignment, formalizing
intergovernmental fiscal relations through allocations of tax revenues between
the state and the local governments, and revenue equalization among the
municipalities.". (World Bank, 1995).
Extrabudgetary Funds...
Extrabudgetary funds' budgets and
operations must be approved by Parliament. The Social Security Fund is the
largest of the extrabudgetary funds, accounting for over 28% of general
government revenue.(World Bank, 1995). This fund is administered by the
Ministry of Finance and financed through the social security tax. Expenditures
of the fund include pension payments, sick pay, maternity pay, and family
allowance. The unemployment benefits are financed through 1.5% of the social
security rate (World Bank, 1995).
Two other significant funds are the
State Privatization Fund and the Environmental Protection Fund, which are
financed through sales of government property and a natural resource tax
respectively. "The State Privatization Fund was established to manage
revenues gained from the privatization of state-owned enterprises and the sale
of other assets.".(EIU, 1995). Municipalities located within the
jurisdiction of the privatization of state-owned property also receive 5% of
the revenues. Riga is the only exception to this rule, and receives 10% of the
revenue. The Environmental Protection Fund gains revenue through the
collection of fines on polluting enterprises and also through a percentage of
the natural resource tax. The fund then utilizes the revenue to finance
projects which are expected to reduce pollution and protect the environment.
Background of Budgetary Revenues...
During the Soviet era, Latvia was a
mainecontributor to the USSR budget, making financial transfers equivalent
20.2% of GDP.(World Bank, 1995). In 1991 those transfers stopped and resulted
in a Latvian surplus of 6.4% in GDP for the year(EIU, 1995). However, social
outlays continued to increase deficit in 1992 and 1993. The 1993 budget ended
the year with a deficit of approximately 2.9% of GDP (EIU, 1995). A new system
of taxation was introduced in January 1991, which included a separate profit
tax for companies and enterprises. In 1993, the profit tax was levied at a
rate of 45% for banking insurance and trade, 35% for state enterprises and
state companies, and 25% for all other private companies. Personal income tax
came into effect on January 1, 1994, levied at a rate of 25% on the first
Lats4.800 and 35% on the remainder of the profit(EIU, 1995). The value-added
tax (VAT) was first introduced at a standard rate of 10% in 1992, and was
raised from 12% to 18% in November of 1993 on most products excluding food
(however the VAT was raised to 18% on food products in March of 1994). The
government has also begun to finance the deficit through the issuance of
Treasury bills.
Composition of Budgetary Revenues...
Fiscal reform measures which have
been implemented since 1990 have changed the structure of budget revenues,
becoming similar to the structrue of revenues in Western Europe. Income tax
revenues have continued to increase while taxes on enterprises and domestic
goods and services have decreased. Social security contributions to total revenue
have risen to levels similar to those in Western Europe. New taxes which have
been implemented are described below according to World Bank information as of
the end of 1995.
Profit tax. This tax is levied on
the net earnings of enterprises, cooperatives, and private entities.
Self-employed persons may pay either the profit tax of the individual income
tax. The tax rate of the profit tax fluctuates between 25% and 45% depending
on the institution. Lottery, casino, and gambling profits pay a profit tax of
65%. There are exemptions for associations which are run for charities,
health, and the handicapped. Legal deductions include expenditures by
enterprises for social purposes. "Adjustments in the value of fixed
assets to an inflation index are currently infrequent and do not follow clear
rules.".(EIU, 1995).
Personal income tax. This tax is
levied on individual's wage income, including bonuses, and the income of legal
entities formed by individuals. The basic rate is 25% with a marginal tax rate
of 35% applying to income which exceeds 20 times the nontaxable minimum.
Social security tax. This tax is
levied on salaries, wages, fees, royalties, and other rewords for work. The
tax is payable in the following proportions by employees and employers.
Employers contribute 37% and employees 1%. For handicapped employees, the
employer pays 8%.
Value-added tax. This tax is levied
on goods and services at the manufacturing/import, wholesale, and retail
stages. The standard rate is 18%, with a reduced rate of 10% being applied to
meat, fish, milk, and feed products. This reduced VAT rate was switched over
to the standard rate in 1994. There are still exemptions, including medical
supplies, concerts and theaters, and transit services.
Excise taxes and customs duties.
Excise taxes are levied on the imports of products by individuals or
enterprises. Customs duties are levied on imports and exports, with export
duties ranging from 5% to 100% and import duties ranging from 2% to 20%.
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